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The Evolution of Government Public Relations in Alberta from 1971-2006

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The Evolution of Government Public Relations in Alberta from 1971-2006 SELLING GOVERNMENT: THE EVOLUTION OF GOVERNMENT PUBLIC RELATIONS IN ALBERTA FROM 1971-2006 by Simon J. Kiss A thesis submitted to the Department of Political Studies In conformity with the requirements for the degree of Doctor of Philosophy Queen’s University Kingston, Ontario, Canada (December 2008) Copyright © Simon J. Kiss, 2008 Abstract The public relations practices of the government of Alberta have elicited substantial controversy, particularly under the administration of Premier Klein. However existing analyses have been insufficiently comparative. This dissertation is a within-case comparison of the evolution of government public relations practices under the three Progressive Conservative administrations of Premiers Lougheed, Getty and Klein. The theoretical framework rejects democratic justifications for government public relations, but accepts an “administrative imperative” that recognizes the use of government public relations techniques to accomplish particular policy goals. At the same time, it recognizes that these practices are often linked to important transformations in the broader political economy. A model of incentives and opportunities of why politicians use public relations strategies to accomplish their goals is introduced to examine the particular evolution in the Alberta case. Premier Lougheed’s administration created a new public relations agency dedicated to improving the administrative efficiency of the government’s public relations function. It was marked by restrained forms of government advertising and a documented commitment to a distinct space for government public relations, insulated from the political demands of the elected level of government. Periodic television appearances by the premier appear to be the most aggressive forms of public relations activities. Premier Getty adopted this model, despite a substantially transformed political environment and despite documented advice to change his government’s practices. Premier Klein recognized this transformed political landscape and substantially reformed government public relations, increasing public i opinion research, adopting manipulative and aggressive news management tactics, politicizing and centralizing the public relations staff and integrating the entire range of public relations techniques into regular politically contentious advertising campaigns. These reforms help to explain some of Premier Klein’s political and policy successes. The dissertation concludes with some of the deleterious consequences of extensive public relations practices by governments in Canada and some recommendations as to how to mitigate against those consequences. ii Acknowledgements Many people supported me in completing this project. I would like to express my deepest thanks to my advisor, Prof. Jonathan Rose who provided me with so much support, cheer and guidance to accomplish this project. This project would not have been possible without all his help. Other faculty who have been so supportive are Profs. Kim Nossal, Grant Amyot, Keith Banting, Wayne Cox and Phil Wood. Karen Vandermey and Barb Murphy have been indispensable in helping me navigate the procedures of both the Political Studies department and Queen’s University. Also, this research was supported by a doctoral fellowship from the Social Sciences and Humanities Research Council and by a W.C. Good Memorial Fellowship from Queen’s University. I am very grateful to both bodies for their support. The support and stimulation my friends provided have been remarkable. I owe a great deal of thanks to Chris Canning, Emmett MacFarlane, George Wooten, Rob Lawson, Dave Thomas, Enda Brophy, Jordan Decoste, Sean O’Meara, Nick Hardy, Mike and Andrea King, Donald Sackey, John Sears, Gord Dueck, Paul Herbert, Jeremy Clarke, Hayden King, Ryan Foster, Alan Bloomfield, Laura Kelly, Mira Bachvarova and Siobhan Byrne for their breadth of knowledge, pressing questions, laughter and camaraderie. In particular, I want to express my deepest thanks to Marcel Nelson for combining friendship and collegiality with being an office mate, spending a great deal of time together in close quarters. Somehow, I made it, and he will too. The long-lasting friendships of Clint and Laura Westman, Kyla Sentes, Todd Ffoulkes- Jones, Aliya Ashraf, Rob and Anja Polikowski, Marilyn Hooper, Tom Emmens, Pete iii Pachal, Chris Samuel and Corey Hayden, have meant a great deal to me by welcoming me back to Edmonton regularly and enjoying old haunts, past memories and wonderful time. I cannot say enough about the support of all my family. My mother and father, Spencer, Ellen, Murray, Anne and Bill have all kept me smiling, grounded and, most importantly, encouraged me to continue. Finally, through her, laughter, smile, support, companionship, and love of simple things and the mysteries of the universe, my partner, Kelly, has made the last years brighter than I could have ever hoped. iv Table Of Contents CHAPTER 1 : INTRODUCTION .................................................................................................................... 1 CHAPTER 2 : LITERATURE REVIEW, EXPLANATORY MODEL, METHODOLOGY .............. 18 2.1 NORMATIVE AND EMPIRICAL THEORETICAL FRAMEWORK .................................................................... 18 2.2 METHODOLOGY AND SOURCES OF DATA ................................................................................................. 34 2.3 SUMMARY ..................................................................................................................................................49 CHAPTER 3 : PROVINCE BUILDING AND RESTRAINED ADVERTISING — GOVERNMENT PUBLIC RELATIONS UNDER PETER LOUGHEED ............................................................................. 51 3.1 POLITICAL ISSUES...................................................................................................................................... 53 3.2 THE MEDIA ENVIRONMENT ......................................................................................................................60 3.3 PARTY SYSTEM.......................................................................................................................................... 65 3.4 GOVERNMENT PUBLIC RELATIONS UNDER PREMIER LOUGHEED...........................................................67 3.5 CONCLUSION.............................................................................................................................................. 79 CHAPTER 4 : SELLING “THE BEST EXPENDITURE MANAGEMENT RECORD IN THE COUNTRY” — PUBLIC RELATIONS UNDER PREMIER DON GETTY ......................................... 85 4.1 POLITICAL ISSUES...................................................................................................................................... 86 4.2 THE MEDIA ENVIRONMENT ......................................................................................................................98 4.3 THE PARTY SYSTEM ................................................................................................................................100 4.4 GOVERNMENT PUBLIC RELATIONS UNDER PREMIER GETTY................................................................106 4.5 CONCLUSION............................................................................................................................................131 CHAPTER 5 : SELLING THE IMPOSSIBLE — PREMIER RALPH KLEIN AND THE PUBLIC RELATIONS STATE .....................................................................................................................................137 5.1 POLITICAL ISSUES....................................................................................................................................139 5.2 THE MEDIA ENVIRONMENT ....................................................................................................................144 5.3 PARTY SYSTEM........................................................................................................................................146 5.4 PUBLIC RELATIONS UNDER PREMIER RALPH KLEIN .............................................................................147 5.5 CONCLUSION............................................................................................................................................194 CHAPTER 6 : THE PUBLIC RELATIONS STATE IN ALBERTA.....................................................200 BIBLIOGRAPHY............................................................................................................................................217 v APPENDIX A : CAREER PATHS OF STAFF IN OFFICE OF THE PREMIER, ALBERTA, 1971- 2007 ....................................................................................................................................................................239 APPENDIX B : FIGURES .............................................................................................................................240 APPENDIX C PRINT ADVERTISEMENTS DURING THE GOVERNMENT OF ALBERTA’S KYOTO PROTOCOL ADVERTISING CAMPAIGN .............................................................................246 vi List of Tables TABLE 1: WHY GOVERNMENTS ADOPT PUBLIC RELATIONS STRATEGIES ........................................................46 TABLE 2: MODEL OF INCENTIVES AND OPPORTUNITIES UNDER PREMIER LOUGHEED .................................... 82 TABLE 3: RELATIONS BETWEEN DIRECTORS OF COMMUNICATION AND MINISTERS 1986-1992 ..................108
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